FAWE Rwanda Chapter- An implementation story

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Hälsa och samhälle

FAWE RWANDA CHAPTER &

’THE CENTRE OF

EXCELLENCE FOR GIRLS’

AN IMPLEMENTATION STORY

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FAWE RWANDA CHAPTER &

’THE CENTRE OF

EXCELLENCE FOR GIRLS’

AN IMPLEMENTATION STORY

EMELIE HOLM

Holm, E. FAWE Rwanda Chapter & ’The Centre of Excellence for Girls’. An implementation story. Exam paper (social administration & management) 60 hp. Malmö högskola: Hälsa och Samhälle, (verksamhetsutveckling), 2009. The explorative research is set out to evaluate if FAWE Rwanda Chapter has, in the eyes of informants, implemented the objectives set for their school program; ‘The Centre of Excellence for Girls’. By a target achievement evaluation model aims this research to explore if the organizational structure design of ‘The Centre of Excellence for Girls’ has had any impact on FAWE Rwanda Chapter’s possibilities to successfully implement their objectives.

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This research includes six depth‐interviews with informants from ‘The Centre of Excellence for Girls’ and one depth‐interview with an informant from FAWE Rwanda Chapter. Questionnaire forms where handed out to two of the participating informant groups; the teachers and the students at ‘The Centre of Excellence for Girls’. Forty questionnaire forms were handed out to the students and ten questionnaire forms to the teachers, with the purpose to support or weaken the data given from the depth‐interviews. The result shows that FAWE Rwanda Chapter has not completely succeeded to implement their set objectives. Some of the objectives are implemented, while some are not! The result shows that the decentralized organizational structure of ‘The Centre of Excellence’ is rather complicated. This has lead up to lacks in the information flow and miscommunication in between the organizational levels, and lacks in understanding the purpose of the objectives. Key words; evaluation, explorative research, experience based gathered data, organizational structure design, implementation and SWOT.

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PREFACE

First of all I would like to thank my informants at FAWE Rwanda Chapter and ‘The Centre of Excellence for Girls’, for all your time and valuable information. Thank you very much! I would also like to send a special thanks to Ms Odette Mukazi Muthangua for your commitment to this research, without your help would this research been impossible. I would also like to thank Josephine Marealle Ulimwengu for

accommodation, introduction of Kigali and good company. I also send my thanks Peter Gregersen for tutoring me during these weeks and Joel Viking Göransson for your invaluable knowledge in the English language. Thank you very much. Finally a special thanks to Martin for accompanying me to Rwanda, for your support and patience. Thank you very much!

4.1 The target achievement evaluation model 14 4.1.1 The benefits of using the target achievement evaluation model 14 4.1.2 Criticism of the target achievement evaluation model 15 5. THEORY OF ORGANIZATION & IMPLEMENTATION 16 5.1 An introduction to the world of organizations 16 5.2 Implementation theory 17 5.2.1 Top-down & Bottom-up – two implementation perspectives 18 5.2.2 Keys to successful implementation 19 5.3 Organization theory 20 5.3.1 Structural functionalism 20

5.4 SWOT 21

6. EARLIER STUDIES 22

6.1 Complicated implementations & structural mismatch 23 6.2 The importance of clear & precise objectives 23 6.3 Implementation obstacles – ISO14001 23 6.4 Importance of good communication in hierarchal organizations 24

7. METHOD 24

7.1 Research interest 25 7.2 Selection of methods 25 7.2.1Eventual problems with triangulation 25 7.3 A language barrier 26 7.4 Telephone interview 26 7.5 Observation method 27 7.6 Qualitative method 27 7.6.1 Validity & reliability 28 7.7 Quantitative method 28 7.7.1 Questionnaire forms – students 29 7.7.2 Questionnaire forms – teachers 29 7.7.3 Validity & reliability 29 7.8 Selection of informants 29 7.8.1 Selection of students 30 7.8.2 Selection of teachers 31 7.8.3 Selection of administrative personnel 31

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7.9 Ethical discussion 32

8. RESULT 33

8.1 The informants’ experiences – are the objectives implemented or not? 33 8.1.1 Decrease repetition rates 33 8.1.2 Increase performance rates 34 8.1.3 Best practice demonstrated 36 8.1.4 Empowerment 36 8.2 The organizational structure design 38 8.2.1 Observed structure 38 8.3.1 A hierarchal organization in transformation 40 8.3.2 Information access 40

9. ANALYSIS 41

9.1 The target achievement evaluation model 42 9.1.1 The result of AFWE Rwanda Chapter’s input activities 42 9.1.2 The side-effects 43 9.1.3 The decision makers’ strategic motifs 43 9.2 Do the informants experience that the objectives implemented? 43 9.2.1 Who are the decision makers? A top-down & a bottom-up analyze 43 9.2.2 Is the implementation impossible without ‘understand’, ‘can’

& ‘will’? 44

9.3The effect the organizational structure design has had on FAWE Rwanda

Chapter’s implementation abilities 45 9.3.1 Structural functionalism – the functions & dysfunctions 45

9.4 SWOT 47

9.4.1 Internal weaknesses & external threats 47 9.4.2 Internal strengths & external opportunities 48

10. DISCUSSION 48

10.1 Final conclusion 49

11. BIBLIOGRAPHY 50

11.1 Literature 51

11.2 Web page material 52

11.3 Hand outs 52 11.4 Figures 52 11.5 Maps 52 12. APPENDIX 53 Appendix 1. 53 Appendix 2. 55 Appendix 3. 57 Appendix 4. 59 Appendix 5. 61 Appendix 6. 64

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Appendix 7. 67

Appendix 8 75

TABLE OF FIGURES

Figure 1. Map of Africa 5 Figure 2. Map of Rwanda 5 Figure 3. Organizational structure of FAWE Rwanda Chapter &

‘The Centre of Excellence for Girls’ 12 Figure 4. Organization schedule 17 Figure 5. Top-bottom & top-down perspective of implementation 18 Figure 6. Structural functionalism 21 Figure 7. The structure of SWOT analyze model 22 Addition Map of FAWE National Chapters 5B

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Figure 2. Map of Rwanda (http://encarta.msn.com/map_701516130/rwanda.html)

1. INTRODUCTION

In this chapter I will shortly present the reasons of why I have chosen to do an evaluation of a Rwandan organization and why I have chosen an organizational perspective. This chapter also includes my hypothesis, my aim of study and my research question.

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Rwanda, also known as the land of the thousands hills is tucked away in the heart of Africa and is primary known to the West by the humanitarian catastrophe of the Rwandan genocide in 1994. During a short period did I study Peace and Conflict theory at the University of Lund and became fascinated by the Rwandan history and culture. I was given the opportunity to do a field study in Rwanda to gather data to my final exam paper. I got in contact with the sub‐Saharan NGO; FAWE Rwanda Chapter, when I was searching over the internet after a Rwandan organization that would capture my interest. Being a student at Malmö University where gender is one of the main perspectives amongst ethnicity and environmental issues, I found FAWE Rwanda Chapter to very much capture my interest due to their struggle for gender equality in education. FAWE Rwanda Chapter showed an interest in having their school program; ‘The Centre of Excellence for Girls’ evaluated. This was an opportunity for me to combine my interest in Rwandan culture and history with my education in social administration and management. In January 2009 did I went to Kigali, Rwanda to spend seven weeks gathering material for the evaluation of one of FAWE Rwanda Chapter’s programs. 1.1.1 My hypothesis I have during my education in social administration studied several theories of public organizational behavior, organizational structures and public implementation processes. I have spent a lot of time thinking about what multi‐leveled organizations need for successful implementing objectives. My personal hypothesis is that a multi‐leveled organization requires an uncomplicated and comprehensive organizational structure design to successfully implement set objectives. The different organizational levels need to be able to interact with each other, it must be easy to access information and the organization needs proper resources to have a successful implementation. I also believe that internal organizational structure behavior is the same all over the world even if it contains different cultural backgrounds. To be able to explore my personal hypothesis I have formulated a more specific aim of study.

1.2 The aim of study

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My aim of study is through a target achievement evaluation model establish if or if not FAWE Rwanda Chapter has, in the eyes of the informants, implemented the objectives directed to their school program; ‘The Centre of Excellence for Girls’. I also want to, by experience based data, establish if the organizational structure design of ‘The Centre of Excellence for Girls’ has affected FAWE Rwanda Chapter’s ability to implement the objectives.

1.2.1 The research question

To be able to follow through the aim of study I have raised a more specific research question. My research question is; ‘Has FAWE Rwanda Chapter, in the eyes of the informants, implemented the set objectives directed to ‘The Centre of Excellence for Girls’ and does the organizational structure design of ‘The Centre of Excellence for Girls’ affect FAWE Rwanda Chapter’s implementation abilities?’. My research question does actually include two questions in one. The first part wants to evaluate if or of not the informants experience that FAWE Rwanda Chapter has implemented their objectives from the Strategic Plan of 2002‐2006 and has a subjective perspective by focusing on the informants experiences. The second part of the research question wants an answer if FAWE Rwanda Chapter’s implementation ability is affected by the organizational structure design of ‘The Centre of Excellence for Girls’ and has an objective perspective by focusing on the organizational structure design. By gathering experience based data I will be able to analyze the effect the organizational structure design of ‘The Centre of Excellence for Girls’ has had on FAWE Rwanda Chapter’s implementation abilities. I have chosen to combine these questions into one research question due to the fact that they are dependent on each other and I did not find it beneficial separating them into main and sub questions. The target achievement evaluation model includes two questions, ‘are the results correspond to the set input goals?’ and ‘have the results been affected by the organization’s input?’, which will be discussed in the analysis with the purpose to get an comprehensive evaluation research. The target achievement evaluation model will be further developed in chapter four. 1.2.2 Subjects of research The subjects of research in this evaluation are FAWE Rwanda Chapter and ‘The Centre of Excellence for Girls’. These subjects of research are interesting because they represent those that most likely can provide material for this research’s analysis and an answer to the research question.

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The interesting individual from these groups are the administrative personnel at FAWE Rwanda Chapter and administrative personnel, staff members and students at ‘The Centre of Excellence for Girls’. Together with literature studies are the informants’ experiences, the foundation of this research’s result, analysis and discussion.

2. BACKGROUND INFORMATION

I will in the following chapter shortly introduce some of the injustices African women and girls are facing every day. I believe it is important to understand and enlighten the African woman’s situation to understand FAWE Rwanda Chapter’s strive to educate young African girls. The chapter is not focusing especially on Rwanda but is concentrating on Africa in general.

2.1 An unfair situation – the African women

“As in many other parts of the world, African women have neither the political, legal, educational, nor economic opportunities of their male counterparts”, this state’s April A. Gordon (2001, p. 271) in the anthology ‘Understanding contemporary Africa’. Even if the African woman’s situation has changed over the years do men still dominate the institutions of society and uses their positions to gain more power and advantages on the public arena (ibid). Life in Africa is difficult for many people, for men and women due to poverty and political problems. But studies show that women, as a group, suffer more than men. Their access to resources and opportunities are fewer. Gordon (2001) means that women born in elite families have access to good education and careers, but even elite women are unlikely to get high political positions or economical power of their own. During the colonization were the women taken away the little power they had. A patriarchal society and male dominance were promoted by the Western ideology. After the colonial period has the policy of undermining females been explained by the Western world as an “African tradition” (ibid) even if it was the colonial power that institutionalized male dominance. Despite the female participation of freeing Africa from the colonial powers had men during the colonization gained so much advantage in education, jobs and properties and they were not ready to give it away or share. The male dominance, which was taught by the Western tutors, stated that the woman’s role was to be dependent on her man because he is the ‘head of the family’. Rather than promoting gender equality are women encouraged domesticity and economic subordination to her husband or father (ibid). The vast majority of African women are limited by both economical underdevelopment and sex discrimination. Although, having an education improves her opportunities to be self‐sufficient (Gordon, 2001). FAWE and FAWE Rwanda Chapter are organizations trying to give African women enough resources to achieve their independency.

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3. RWANDA

I believe that it is important to include the history of Rwanda in this research due to enhance the understanding for the organizational premises of FAWE Rwanda Chapter and ‘The Centre of Excellence for Girls’ 3.1 Why genocide? The World Bank did in the summer of 1994 classify Rwanda as the poorest country in the world (Meredith, 2006). Today has Rwanda come a long way in its development process but is still hurting social and economically (ibid). Rwanda has been known for its equality programs regarding both ethnicity and gender. It is institutionalized by law that at least thirty per cent of the participants of the parliament must be females (United Nations Development Program, 2009). This is a law that actually has made the Rwandan parliament the most gender equal parliament in the world. The parliament presented a female participation of 48.8 per cent in 2007. This can be compared to the Swedish government and a female participation of 47.5 per cent in 2007 (Worldbank, 2009). The purpose of why female participation is so important could be interpreted as a natural reaction of genocide. A history of violence might create a need of equality on all levels; regardless ethnical participation, social status or sex. The causes of the violence in 1994 have been given several explanations. One of them is regarding the land issues. Rwanda is the most overpopulated country in Africa and this has been seen as a cause to intense hatred between the ethnical groups the Hutus and the Tutsis. One of the reasons they were fighting were because of land (Helmertz, 1997), without land was it difficult surviving. Scheper‐Hughes & Bourgois, (2005) state that genocide only can happen if the people have a mindless obedience for authority figures. Helmertz, (1997) claim that historically have the Banyarwandans, the people of Rwanda, proved a strong loyalty and regard for hierarchal structures. They showed respect and obedience for authority figures and system. Before colonization a strict organized governing system divided the country into regions, communities, sectors and sub‐sectors. These were all led by different chiefs and leaders (ibid). Other theorists state that some people are willingly, without fear of punishment from authority figures, killing other people because they chose to do so (ibid). But when mass participation in genocide takes place one has to regard social‐structures, political‐economics, culture and psychological perspectives. Causes of genocide can not be explain only from one perspective (Scheper‐Hughes & Bourgois, 2005).

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3.2 History of Rwanda Originally it was the ethnical group Twa that inhabited the Rwandan territory. But in the 11th_century ancestors of the Hutus immigrated to Rwanda and Four hundred years later did the Tutsis immigrated and settled in. Despite being a minority group did the Tutsis manage to overpower the Hutus (Helmertz, 1997) and the Tutsi king became the ruler over Rwanda. When Rwanda became colonized, first by Germany and later on by Belgium, was the Tutsis given privileges at the expense of the Hutus. A fraction between the two ethnical groups became obvious, and afterwards has Belgium as a former colonial power, been accused for establishing and encourage separation and conflict between the groups. The colonial period were imprinted by a biological racism and in Rwanda was troops sent out to assert an ethnical difference between the Tutsis and Hutus. The main purpose was to prevent that the Tutsis and the Hutus conjoined in revolution against the colonization power (Sheper‐Hughes & Bourgois, 2005). Rwanda got their independence in 1962. And between the years of 1965 and 1989 did Rwanda have an economical growth of five per cent per year. Parallel with the positive economic growth did the conflict between the two ethnical groups grow stronger (Meredith, 2006). Ongoing minor civil wars could not be prevented and in the 1980s did the battle between the Hutus and the Tutsis accelerated into a medial war. (Gourevitch, 2000). Genocidal propaganda was sent out through newspapers and radio. Radio Television Libres des Milles Collines aired Hutu powered pop stars singing songs of race hatred (ibid). In April in 1994 was the aircraft of the president shoot down killing the Rwandan president Habyarimana along with the Burundi president. Following was the Prime Minister Agathe Uwilingiyimana killed along with Belgium UN peacekeepers acting as her bodyguards (Miall, Ramsbotham & Woodhouse, 2004). The civil wars did now culminate into a humanitarian catastrophe. The outside world did not respond to what was happening and the General in Command of UN Peace Keeping Force, Roméo Dallaire, desperately tried to awaken the world but no one would listen (Dallaire, 2003). During the following hundred days between eight hundred thousand and nine hundred thousand Rwandans were killed. Two million people were classified as refugees and Rwanda was a destroyed country. No hospitals and no schools existed. Government buildings were destroyed or ransacked. There were no police, no public utilities as electricity, water and no communication abilities existed. The organized agriculture was gone as well as many years of harvest. When President Paul Gagame in 18th_of June 1994 declared the ending of the war, were the ditches still full of rotting bodies. As mentioned above the World Bank stated Rwanda as the now poorest country in the world (Meredith, 2006).

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3.3 Rebuilding the education system Today ambitious there is ongoing rebuilding programs of for example the education system. Twenty five per cent of the state budget is dedicated to reinforce the education system. Despite of these investments are the schools in Rwanda still rather few. It is normal that one teacher is educating seventy children and there is a great lack of school supplies. About ninety seven per cent of the Rwandan children start the compulsory six‐years‐long school program. This is a high rate for the sub‐Saharan territory. None the less, only thirty nine per cent follow through all the six years (Utrikespolitiska Institutet, 2009). The heart of this research does not lay in gender equality in education. It is an interesting subject but I my focus are on the implementation processes and the impact organizational structure designs can have on an organization’s implementation abilities. Although, to understand the premises of being an organization in Rwanda I found it important to include a short version of the Rwandan history. FAWE Rwanda Chapter (Forum for African Women Educationalists) is operating all over Rwanda with the purpose to achieve a higher education level amongst girls and young women. The government’s policy on parliamentarian gender equality results in a need of adequate education for women if they are to work under the same premises as men. Men have often a higher education level than women and are at the same time most likely to be favored by society due to tradition and cultural behavior (Gordon, 2001). FAWE Rwanda Chapter is trying to achieve gender equality in education so women can have the same opportunity as men being a part of the growing society of Rwanda. FAWE Rwanda Chapter believes that the power of education is the key to prevail work and social related exclusion of women. Education is unfortunately often dedicated to some lucky few in the third world and girls are often not amongst those lucky few (ibid).

3.4 FAWE & FAWE Rwanda Chapter

FAWE (Forum for African Women Educationalists) were created in 1992 with the purpose to provide education for girls and young women excluded from the education system. FAWE is a non‐governmental African organization operating in several African countries with their headquarters located in Nairobi, Kenya1_{. FAWE Rwanda Chapter is one of FAWE’s Sub‐Saharan national chapters. FAWE Rwanda Chapter} started in 1997 and is, just like FAWE, an organization promoting gender equality in education. FAWE Rwanda Chapter provides six different programs which intent to affect the policy making in gender and education in Rwanda. The six programs are policy and advocacy, replication and scaling up of intervention, community advocacy, capacity building of the chapter, organizational reconstruction and finally institutionalize monitoring and evaluation. FAWE Rwanda Chapter’s school ‘The Centre of 1_{See country members of FAWE in appendix n.___}

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Excellence for Girls’ is one a part of the replication and scaling up for intervention program, and they also provides education for girls and young women in refugee camps all over the country (’While We Are Waiting’, 2008). FAWE Rwanda Chapter has developed a so called speak‐out program. This speak‐out program is called TUSEME, which means speak‐out in Swahili. TUSEME is a learning program for girls and young women. They are taught the importance of empowerment, self‐ sufficiency and speaking out when being mistreated (While We Are Waiting, 2008). They also provide a mentor program where female university students and professionals are mentoring younger girls. The mentor program is meant to strengthen girls’ confidence and encourage them to well academically and social performances (’FAWE Rwanda News Letter, September‐ December 2008’). FAWE Rwanda Chapter is working close with the Ministry of Education with the purpose to influence the government’s policy on gender equality in education. The Ministry of Education is stated as FAWE Rwanda Chapter’s strategic partner (FAWE Rwanda Chapter Work Plan, 2008)

3.5 ‘The Centre of Excellence for Girls’

‘The Centre of Excellence for Girls’ is a part of FAWE Rwanda Chapter’s replication and scaling up for intervention program. It is a public girls’ school situated in Gisozi Gasabo district in Kigali City, Rwanda. ‘The Centre of Excellence for Girls’ was founded in 1999 by FAWE Rwanda Chapter in partnership with the Ministry of Education. ‘The Centre of Excellence for Girls’ is a boarding school with seven hundred girls at the secondary school level. The school has employed thirty teachers, mainly educating in science subjects. In 2008 was ‘The Centre of Excellence for Girls’ stated as the third best school in Rwanda, based on the students’ examinations. In the education program is it stated that all girls shall, apart from the regular education, have access to education in gender equality, empowerment, peace and co‐existence. The students shall have excess to counseling, career guidance and life skill training (FAWE Girls’ School, ‘The Centre of Excellence for Girls, 2007). The education program also states that the teachers are gender sensitive and FAWE Rwanda Chapter does educate the teachers in gender equality on a regular basis (ibid).

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3.5.1 The organizational structure design Due to a governmental policy of decentralization of all public organizations is the organizational structure of ‘The Centre of Excellence for Girls’ effect by this organizational change and has to been seen as a classical hierarchal organization that strives to decentralize the system. The purpose of decentralization is to delegate tasks downwards (Christensen et al 2005). Decentralization is supposed to provide the system with a greater efficiency and is keeping resource costs down (Bakka, Fivesdal & Lindkvist, 2001). To decentralize has ‘The Centre of Excellence for Girls’ delegated several tasks downwards in the organizational system. The decentralization is in line with the school’s gender empowerment program because the many tasks are delegated to students, with the purpose to strengthen the girls to be self‐sufficient. This will be more thoroughly discussed further on in the following chapter. Within each class are students choosing fellow students to be representatives of the class. The students are chosen to help their classmates when they are having problems with for example academics or discipline. Each class is also choosing a class counselor who is by FAWE Rwanda Chapter educated to help her fellow students if they are having problems of a psychical art. The elected student representatives are supposed to be a link between the students and the administrative personnel. To embrace the empowerment program are the representatives also invited at board meetings with FAWE Rwanda Chapter and administrative personnel from ‘The Centre of Excellence for Girls’. ‘The Centre of Excellence for Girls’ does provide an adult school counselor if the students not are able to sort out their problems on their own. This counselor is also working as a full time teacher at the school. The figure is illustrating the organizational structure at ‘The Centre of Excellence for Girls’ ’The Girls’ School of Excellence’ Head Mistress Parents or Person in charge of Child District level (MINEDUCs representation on local level)

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Figure 3. Organizational structure of FAWE Rwanda Chapter & ‘The Centre of Excellence for Girls’

3.6 The Strategic Plan of 2002-2006

The Strategic Plan of 2002‐2006 contains several objectives which are directed to the different programs that FAWE Rwanda Chapter is working with. I have classified the objectives directed to ‘The Centre of Excellence for Girls’ into minor subject groups. These subject groups were used as main categories during the gathering of data. The categories are also used in the analysis to establish if or if not, in the eyes of the informants, FAWE Rwanda Chapter has implemented the objectives. The purpose of categorizing the objectives into minor subject groups was due to the fact that the objectives became easier to gather the data I was looking for in the interviews, both qualitative and quantitative, but the categorization also simplified the analysis of the gathered material. Academics Dicipline Bursaires Head of Department Directors

Counselors Teachers Class Teachers

Student

Counselors Students

SYMBOLS

= same profession

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The categorizations of the objectives from the Strategic Plan 2002‐2006 are these following,

 Decrease repetition rates  Increase performance rates  Best practice demonstrated  Empowerment These four categories will be used in the analysis to answer the research question; if or of not FAWE Rwanda Chapter has implemented the objectives and if FAWE Rwanda Chapter’s implementation abilities are effected by ‘The Centre of Excellence for Girls’ organizational structure design. To be able to understand what the categorizations mean will I shortly present their content. Decreased repetition rates and increase performance rates are two categories that can be describe as improving the girls grades. FAWE Rwanda Chapter wants to lower the number that repeats and increase the students’ performances (Strategic Plan 2002‐2006, 2002). The students’ performance rates are used as components in the annual evaluation of ‘The Centre of Excellence for Girls’. Best practice demonstrated means that ‘The Centre of Excellence for Girls’ is supposed to be a demonstration of good practices for girls’ education. ‘The Centre of Excellence for Girls’ is seen as a role model for other schools in Rwanda. The higher performance ‘The Centre of Excellence for Girls’ can show, the higher chance for FAWE Rwanda Chapter to get other schools interested in their programs. The last category includes five minor sub categories of empowerment. These are; increase empowerment for girls, girls able to identify issues and plan solutions, decreased sexual harassment, gender issues identified, increased awareness of girls education issues (Strategic Plan 2002‐2006, 2002). These five sub categories represent FAWE Rwanda Chapter’s strive to increase girls’ self‐esteem, give girls power to say no, give girls basic knowledge in gender equality and human rights. But they also strive to make the Rwandan people aware of the importance of gender equality in education (ibid). To be able to implement objectives must an organization set out input activities to achieve a successful implementation of the objectives. Following will FAWE Rwanda Chapter’s inputs activities be described.

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FAWE Rwanda Chapter’s input activities are amongst others to train the faculty and students of ‘The Centre of Excellence for Girls’ (Strategic Plan 2002‐2006, 2002). Training of faculty is set out to enhance the teachers’ and the administrative personnel’s’ competence in gender issues by having annual work‐ shop activities. The training of the students is the students’ participation in TUSEME clubs with the purpose to enhance the students’ abilities to speak‐out and be aware of gender issues. FAWE Rwanda Chapter also states in the Strategic Plan of 2002‐2006 that the students need to enhance their knowledge in life skills. Life skill training is set out to enhance the students’ capability to make their own decisions and to negotiate for their own rights. FAWE Rwanda Chapter also declare that a five day festival are going to be held every year at ‘The Centre of Excellence for Girls’ where successful women are invited to talk to the students with the purpose to influence them to work harder in school. In conclusion, the categorized objectives were used in the gathering of material, both qualitative and quantitative, but the categorized objectives is also used in the analysis to state if or if not, in the eyes of informants, FAWE Rwanda Chapter has implemented their objectives. The concretization of the objectives was made due to the fact that it simplified the process of gathering data and answering the research question.

4. EVALUATION MODEL

Evaluations can be preceded in many different ways depending on what kind of information the evaluator is looking for. In this research it is experienced based information that is the most important information. By gathering experienced based data will I be able to evaluate if or if not FAWE Rwanda Chapter has, in the eyes of the informants, implemented their objectives directed to ‘The Centre of Excellence for Girls’. The experienced gathered data about the organizational structure design of ‘The Centre of Excellence for Girls’ will be used to analyze the effect the organizational structure design of ‘The Centre of Excellence for Girls’ has had on FAWE Rwanda Chapter’s implementation abilities. Vedung (1998) presents several different ways to do evaluations. I have chosen the target achievement evaluation model due to the fact that it can be applied on my aim of study.

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The target achievement model is one of many evaluation models that can be used when evaluating public organizations. I will further on affirm the benefits as well as some criticism of using the target achievement evaluation model when evaluating a public organization.

4.1.1 The benefits of using the target achievement evaluation model

One of the benefits in using the target achievement evaluation model is the simplicity of model. The simplicity dues to the fact that the model only needs to answer two main questions to be fulfilled as an evaluation model. As mentioned in the chapter 1.2.1 ‘The research question’, are the evaluation model’s questions that need to be answered the following; ‘are the results corresponding with the set input goals?’ and ‘have the results been affected by the organization’s input?’ To get a comprehensive analysis of this research these questions will, together with the research question, be answered in the analysis. I have chosen to use the target achievement evaluation model because the simplicity of the model. Vendung (1998) states the strengths of the model are the model’s democracy perspective and the model’s research perspective. The model is founded in a parliamentarian governmental chain of democracy and successfully implemented goals are to be seen as beneficial for the public. The target achievement evaluation model also has its strength in its objectivity perspective, due to the fact that the model is evaluating empirically gathered data.

4.1.2 Criticism of the target achievement evaluation model

As all evaluation models does also the target achievement evaluation model have some weaknesses that have to be discussed. One of these weaknesses is the model’s exclusion of an economical perspective (Vedung, 1998). Vedung (1998) also criticize the exclusion of a side‐effect perspective. The model also excludes strategic motifs and a top‐down perspective, elements important to get a comprehensive evaluation. Vedung (1998) also discusses the problems of evaluating an organization’s ability to achieve its objectives due to the fact that objectives often are rather vaguely formulated and therefore automatically are difficult to achieve. I have chosen to handle the criticism by for example complementing the analysis with a SWOT‐model, a model which analysis an organizations’ strengths, weaknesses, opportunities and threats (Hatch, 2002). By including a SWOT‐analyze will the target achievement evaluation model’s lack in an economic perspective be compensated. The target achievement evaluation model does not include unexpected but I find these rather important and will therefore discus them in the analysis. The criticism of excluding the decision makers’ strategic motifs will also be discussed in the analysis because the strategic motifs can affect the outcome of a set implementation (Vedung, 1998).

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The hierarchal top‐down perspective of this model has been criticized because the evaluation model assumes that the top of the organization has the supremacy to control the grass root organization (Vedung, 1998). FAWE Rwanda Chapter and ‘The Centre of Excellence for Girls’, is as mentioned in the chapters 3.4 and 3.5, striving towards a decentralized structure but is still imprinted by a hierarchal structural design. Due to this I find it rather beneficial that the target achievement evaluation model is imprinted by a hierarchal top‐down perspective. To prevent problems with vague formulated objectives I have categorized FAWE Rwanda Chapter’s objectives into four categories; decrease repetition rates, increase performance rates, best practice demonstrated and empowerment. The categorization of the objectives does not completely erase the fact that the objectives are vaguely formulated, but it is beneficial when using a target achievement evaluation model to precise the objectives. I still find the target achievement evaluation model the most appropriate model to use in this research despite the criticism towards model. I am evaluating if or if not FAWE Rwanda Chapter has implemented their objectives directed to ‘The Centre of Excellence for Girls’ and if the organizational structure design of ‘The Centre of Excellence for Girls’ effect on the implementation abilities of FAWE Rwanda Chapter, and I did not find another evaluation model more useful than the target achievement evaluation model? To be able to do an evaluation of FAWE Rwanda Chapter and the organizational structure design of ‘The Centre of Excellence for Girls’ I have to apply theory on my gathered empirics. The next chapter will present the two different main theories I have chosen to apply on my gathered data, all to enhance a fulfilled target achievement evaluation.

5. THEORY OF ORGANIZATION &

IMPLEMENTATION

I have chosen to use two main theories to be able to evaluate if or if not FAWE Rwanda Chapter has implemented the objectives directed to ‘The Centre of Excellence for Girls’ and to be able to analyze if the organizational structure design of ‘The Centre of Excellence for Girls’ has affected ‘FAWE Rwanda Chapter’s implementation abilities. I have found it impossible to provide a comprehensive analysis and to bring an answer to the research’s main question if only one theory would be applied.

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This research’s aim of study is to evaluate if, in the eyes of informants, FAWE Rwanda Chapter has or has not implemented the objectives from the Strategic Plan of 2002‐2006 directed to ‘The Centre of Excellence for Girls’. To be able to provide a proper analyze on this matter I will be applying an implementation theory on the gathered empirics. I will include a top‐down implementation perspective but also a bottom‐up implementation perspective to describe the implementation process in FAWE Rwanda Chapter and ‘The Centre of Excellence for Girls’ which are hierarchal organizations striving towards a decentralized system. I will also discuss the three keys to achieve a successful implementation; the importance of ‘understand’, ‘will’ and ‘can’. To be able to analyze if the organizational structure design of ‘The Centre of Excellence for Girls’ has affected FAWE Rwanda Chapter’s implementation abilities will I apply an organizational theory of structural functionalism. Structural functionalism is a classical sociological theory but has occasionally also been used as an organizational theory. I will be using this theory because it includes aspects that are essential when studying the functions and structures of the organizational structure design of ‘The Centre of Excellence for Girls’. Finally I have included a model that is not to be seen as a theory but I will discuss it in this chapter anyway because it is important for the final analysis. I will include a SWOT‐model. SWOT (strengths, weaknesses, opportunities and threats) enlightens the internal and external socio‐economical factors an organization can face (Hatch, 2002). A SWOT‐analysis is essential to apply on an evaluation of an organization located in the third world. To say that implementation skills and the organizational structure design are not affected by socio‐economical factors is rather foolish. This chapter will start with a short introduction of public organizations’ structures and designs due to the fact that it is rather important to know what an organization is, how they look like and why they come about.

5.1 An introduction to the world of organizations

What is an organization? How does it look like and why has it come about? Curt Andersson (1994) states that all organizations are different both in size and complexity and created by people having the desire to implement objectives. Almost all organizations have a structure that divides the organization into several levels and minor sections. The separate levels and sections have their own internal hierarchy and management system (Bakka, Fivesdal & Lindkvist, 2001). An organization can therefore be defined as a multi‐leveled system created by people striving implementing the same objectives (ibid). On the other hand is it important to notice that all organizations do not have identical systems (Forssell & Westerberg, 2007).

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The following figure illustrates a standardized public organizational structure design, with a multi‐ leveled system and minor sectors imprinted by a hierarchal order. This model illustrates a classical top‐ down steered organizational structure design. It is partly taken from Forssell & Westberg (2007, p.29) but I have made some additions to clarify how a multi‐leveled top‐down hierarchal organizational structure design can be illustrated. My additions are the lines that divide the organization into three different levels. The first level represents the sector of decision makers, the second level represent the administrators’ level and finally the third level represent the employees’ level. Forssell & Ivarsson Westerberg’s (2007) organizational schedule includes the boxes inside the triangle and these boxes represent the different minor sections that are created within the different organizational levels. Decision makers Multi‐leveled organization Administrators Employees Figure 4. Organization schedule after Forssell & Ivarsson Westerberg (2007, p.29). 5.2 Implementation theory When evaluating the organizational structures behind successful or non successful implementation it is essential applying an implementation theory.First of all I think it is appropriate with a definition of

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‘implementation’ so that its meaning actually is declared. Sannerstedt (2002) states that implementation should be defined as “implementation of a political decision”. Although, implementation is not always targeting political organizations and can therefore also mean the implementation of something else, for example new ideas (Malmström, Györki, Sjögren, 2002). I will use ‘implementation’ as implementation of decisions or directives and therefore erase the political sense. I will discuss two different implementation perspectives, which illustrates organizations being top‐down or bottom‐up steered. If an organization is top‐down steered or bottom‐up steered effects the implementation process. I find it relevant to include these two implementation perspectives because the top‐down perspective describes a hierarchal organization’s implementation process and the bottom‐ up perspective describes a decentralized organization’s implementation process. The two perspectives will be applied on the gathered empirics to be able to answer the last part of the research question; if the organizational structure of ‘The Centre of Excellence for Girls’ affects FAWE Rwanda Chapter’s implementation abilities?

5.2.1 Top-down & Bottom-up- two implementation perspectives

Sannerstedt (2002) states that when talking about implementation one have to define the relationship between the decision maker and the executor. Traditionally it is the decision maker that sets the rules and the executor that obeys. This is a system often criticized for being out of date. Although, in larger system as hierarchal multi‐leveled organizations, is it rather logic and realistic (ibid).

Decisions made in an authoritative organization system, a top‐down system, are taken at the top of the organization. These decisions are based only on the thoughts and ideas of the decision makers and are expected to be followed through by the executors. The implementation process starts at the top to be applied downwards (Lundquist, 1987). A typical top‐down perspective is presuming that the necessary decisions already are made at the top and that they do not need to be thought trough at other organizational levels by for example the executors (Hall & Löfgren, 2006). Political organizations do often belong to the top‐down implementation system where the implementation process is seen as a routine (ibid). The bottom‐up implementation perspective is having its focal point on the executors and the executors’ actions. This perspective is interested in the organization’s administrators and the grass‐roots; all these we call the executors of decisions (Sannerstedt, 2002). Michael Lipskey states in his ‘Street‐level bureaucracy’ from 1980 that in a bottom‐up implementation perspective, a decentralized system, has the executor good opportunities to affect the essence of the organization (ibid).

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The figure illustrates both a top‐down implementation perspective and a bottom‐up perspective. The figure shows how an implementation processes are steered in hierarchal system and in a decentralized system. Top‐down (Centralized system) Bottom‐up (Decentralized system) Decision Makers Decision Makers Executors Executors Figure 5. Top‐bottom & top‐down perspective of implementation These two perspectives are interesting for this research due to the fact that they very much describe the implementation processes in a classical organizational system or in a decentralized organizational system. The bottom‐up implementation perspective defines a decentralized organization, where decisions are taken elsewhere than at the top. The top‐down implementation process represents a classical hierarchal organizational system where the decisions are made at the top. The both implementation perspectives are important to include in the research’s analysis ‘The Centre of Excellence for Girls’ has a hierarchal organizational structure design that strives to be decentralized. Being in transformation can possibly affect FAWE Rwanda Chapter’s implementation abilities and affect the organizational structure design of ‘The Centre of Excellence for Girls’.

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5.2.2 Keys to successful implementation The keys to successful implementation are important theoretical items to include in this research because they might answer the question ‘if or if not FAWE Rwanda Chapter has implemented the objectives directed to ‘The Centre of Excellence for Girls’. A multi‐leveled, top‐down steered, organization does occasionally have problems implementing decisions (Sannerstedt, 2002). It is common that the decision makers find the decisions implemented in other manners than what was intended. This means that the decisions made at the top of the organization change in character when being implemented in other sections of the organization as well as change when coming in contact with the different executors (ibid). How can an organization prevent this from happening? Lundquist (1987) states in his book ‘Implementation steering’ three concrete ways on how to handle implementation problematic of this kind. Lundquist (1987) means that first of all must the executor understand the decision, secondly must the executor be able to implement the decision, having enough resources and finally must the executor have the will to implement the decision. If these three components not are fulfilled will the organization experience a problematic implementation process. The importance of ‘understand’. One of the keys to successful implementation is that the executor understands the implementation. One could think that the executor who does not understand the implementation somehow is unintelligent or acts dumb to sabotage it. But normally it is not so. Hall & Löfgren (2006) states that directives and decisions in multi‐level organizations are often not taken by one person but are a compromise between several individuals. This can make the decision vague and for the executor difficult to understand. Another problem is also that vague directives can be individually interpretable, and therefore be implemented by an individual interpretation (ibid). The importance of ‘can’. With the key ‘can’ does Lundquist (1980) mean that the executor must have resources to implement the decision. Even if the executor has understood the decision can not he or she implement it if there is a lack in resources. Resources are often signified by proper finances, utilities, equipments, technique, staff and time (Sannerstedt, 2002). The lack of capacity in resources is the formal dimension of implementation problematic (Hall & Löfgren, 2006).

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The importance of ‘will’. When the decision makers have overcome the obstacles of misunderstanding and lack in resources must he or she face the most powerful obstacle of them all. A decision maker can never neglect the power of the executors will to execute. The decision maker has to make sure that the executor has an interest in the decision, it is even important to make sure that he or she likes the decision (Sannerstedt, 2002). To prevent the executor’s lack of will is it beneficial if the executor in some way have been a part of taking the decision. It is also valuable that the executor likes the decision, few people do things thorough and efficient if they do not like it. Even fewer people do things thorough and efficient if they do not have had any opportunity to be part of the decision making process (ibid). 5.3 Organization theory The structural design of an organization is essential. It is stated to be the key to an organization’s actual behavior. The structural design portrays the overall work within the organization, dividing it into subunits or sectors, and describing their different assignments (Cummings & Worley, 2001). To be able to analyze if the organizational structure design of ‘The Centre of Excellence for Girls’ has had any effect on FAWE Rwanda Chapter’s implementation abilities I will apply the organizational theory of structural functionalism onto the gathered empirics. I will describe the theory’s background in sociology and also explain Parsons’ AGIL‐schedule and why structural functionalism is such a beneficial theory for this research. 5.3.1 Structural functionalism Structural functionalism is originally a sociological theory founded by Talcott Parsons (Ritzer, 1996). Hammarén (1997) states that structural functionalism at first was a theory used for studying society but structural functionalism also can be used when analyzing organization’s structure designs. Structural functionalism is interesting because it is analyzing the connection between structure and function, and their tendency to relate to each other (Hammarén, 1997). When analyzing how the structure and the functions are linked together one has to define the functions to see if they are functional or dysfunctional and how they are influencing on the organizational structure (ibid). ‘Dysfunction’ within an organizational system would be defined as; lack of will, financial problems, collaboration, infiltration, external sabotage, insufficiencies or other organizational damages. ‘Functions’ are obviously the dysfunctions opposites; they have clear goals and are providing the organizational system with stability (Hammarén, 1997). Parsons states that there is four functional characteristics for all systems; adaption, goal attainment, integration and latency. In short terms called the AGIL‐schedule (Ritzer, 1996 p.237).

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 A-adaption  G-goal attainment  I-integration  L-latency Adaption means that a system always has to cope with external situational demands. The system, the organization, has to adapt to its surroundings but also adapt the surroundings to the organization’s needs. A system also must define its primary goals and objectives; the goal attainment. The integration of the system means that the system has to control the relationship of its component parts, but also manage the relationship with the other three functions (A, G and the L). Finally is the function of latency which states that the system must maintain and renew both the motivation of individuals within the system (Ritzer, 1996). The AGIL‐schedule will be used when analyzing ‘The Centre of Excellence for Girls’ organizational structure design to study if it has had any effect on FAWE Rwanda Chapter’s implementation abilities. The different functions and dysfunctions of the organizational structure design of ‘The Centre of Excellence for Girls’ will be discussed in the analysis. The figure illustrates the theory of structural functionalism. Dysfunctions  Lack of will  Financial problems  Collaboration  Infiltration  External sabotage Functions  A- Adaption  G- Goal attainment  I- Integration  L- Latency

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Figure 6. Structural functionalism Some critics claim that one of the down‐sides with structural functionalism as an organizational theory is that the functions often are joined together with the dysfunction and vice versa in real life situations. In structural functionalism are the dysfunctions and the functions separated. The positive side to the separation makes, on the other hand, it easier to theoretical analyze the dysfunctions and functions in an organization’s structure design. Despite some criticism towards structural functionalism I still find it essential as an organizational theory in this research. I am set out to evaluate and answer the research question, if or if not FAWE Rwanda Chapter has implemented the objectives and if they have or have not implemented the objectives is due to the organizational structure design of ‘The Centre of Excellence for Girls’. Structural functionalism is therefore seen as a theory highly useful for analyzing the functions and dysfunctions in the organizational structure design of ‘The Centre of Excellence for Girls’. 5.4 SWOT As already mentioned I will apply a SWOT‐model analysis on the gathered empirics because it would be difficult evaluating an organization in the third world without including a socio‐economical perspective. SWOT is a model for analyzing an organization’s strengths, weaknesses, opportunities and threats (Hatch, 2002). Bakka, Fivesdal & Lindkvist (2001) states that the SWOT‐model analyzes both external and internal factors of an organization’s strategy. It estimates the internal strengths and weaknesses of an organization’s strategy but also considers external factors as changes in the organization’s The system; The organizational strucurte

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surroundings. These factors are evaluating the relevance of the organization’s strategy and its abilities to handle challenges (Eriksson‐Zetterquist, 2006). There is several ways to illustrate a SWOT‐ model, this is just one of them but in its simplicity it is easy to explain the foundation of SWOT. Figure 7. The structure of SWOT‐model from Bakka, Fivesdal & Lindkvist (2001 p.239) The purpose of the model is to increase the awareness of external threats as changes in the organization’s surroundings but at the same time provide the organization with ideas on how to handle internal capacities so that the organization has a chance to develop (Eriksson‐ Zetterquist, 2006). The research question; ‘has FAWE Rwanda Chapter, in the eyes of the informants, implemented the set objectives directed to ‘The Centre of Excellence for Girls’ and does the organizational structure design of ‘The Centre of Excellence for Girls’ affect FAWE Rwanda Chapter’s implementation abilities?’ must be analyzed and answered with organizational theories. But, as mentioned above, ignoring the socio‐ economical factors when studying an organization in a third world country would not provide the research with a comprehensive analysis. This is the reason of why I have chosen to complement structure functionalism and implementation theory with a SWOT‐model.

6. EARLIER STUDIES

SUROUNDINGS (external) Threats ORGANIZATION (internal) Weaknesses Offensive strategies Defensive strategies

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This research is aiming to establish if or if not FAWE Rwanda Chapter has implemented their objectives and the effects the organizational structure design of ‘The Centre of Excellence for Girls’ has had on FAWE Rwanda Chapter’s implementation ability. Therefore I am interesting in earlier studies targeting implementation processes, organizational structure designs and different implementation obstacles. I have not found that it is important to focus on implementation processes in African NGOs because, as I stated in my hypothesis I believe that internal organizational behavior is the same all over the world. The earlier studies be used to affirm the difficulties of implementing, what kind of obstacles an organization is facing in an implementation process, the importance of clear and precise objectives, the effect the organizational structure design has on the implementation process and the importance of interaction and good communication. The earlier studies will be applied in the analysis. Finally I must state that not all of the studies are dissertations but I have chosen to include them in this chapter due to their relevance for the analysis. I searched earlier studies on the computer databases ELDIS, Malmö University’s computer database ‘Samsök’ and on the computer database ‘SAGE journals online’. The exam papers were found on the internet search engine ‘Google’

6.1 Complicated implementations & structural mismatch

Christine Teelken published in 2008 an article of her study of the implementation of the PMS (performance measurement systems) into the Dutch health care and high education sector. The aim of this study was to provide an explanation for the difficulties experienced with implementing PMS. By interviewing seventeen informants in two different periods, in 2003 and 2006, could Teelken (2008) state that complicated and sophisticated implementations like the PMS is most likely to be worked around by the employees. The employees are working around the implementation, in fact ignoring it because they do not understand it. This study focuses on the difficulties with implementing PMS, which are a management system mainly developed for the private sector. Implementing such a system in public organizations creates problems due to the fact the organizational structure design of the public sector and the private sector is operating differentially. The private sector’s elements do not fit the nature of professional service organizations, according to Teelken (2008). The results of this implementation are an implementation that is superficial, ceremonial and slow. In conclusion, the biggest problem in this implementation was the lack of understanding and the organizational structure design of the public sector.

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6.2 Importance of clear & precise objectives Anderberg & Nilsson (2005) writes in their study ‘Friårets införande. Vad innebär det för arbetsförmedlingen som organisation?’2_{that decisions and directives, during an implementation process} have to be clear and precise. If they are not, the risks of failure increase. Anderberg & Nilsson (2005) has an explanative approach and by five depth‐interviews and the organization theory structural functionalism stated that the implementation of the sabbatical year created problems for the employment office. The employment office were handed small resources and the decision makers did not give sufficient information and directives about the implementation of sabbatical year. The information given was vague and it opened up for different individual interpretations of the implementation’s purpose. In conclusion, if the employment office would to be handed the proper tools as enough resources and clear and precise directives would maybe the implementation of the sabbatical year been a bigger success than it was.

6.3 Implementation obstacles – ISO 14001

Fingal & Benipoor (2003) have in their study “ISO 14001. Obstacles or opportunities?” located the obstacles and opportunities when implementing an environmental management system in three different types of organizational structure systems. The study is based on four depth‐interviews, one in a private company, one in a public organization and two independent consultants to state their experiences of the implementation of the environmental management system ISO 14001. The aim of study is to explore the obstacles that arise with the implementation of ISO 140001 but also to identify obtainable solutions to the found obstacles. The result of this research shows that to be able to successfully implement organizations need to have resources, time and economy, but also education to increase an understanding for the purpose of the implementation. The results also show that the staff members have to be respected in the implementation process. They have to know the consequences of the implementation and it is important to recognize that the staff members need to be a part of the implementation process. If they are excluded from this, the analyze shows, that the staff members can be an obstacle difficult for the organization to handle. In conclusion, to be able to successfully implement must an organization have the proper resources but also educate the employees so they understand the implementation.

6.4 Importance of good communication in hierarchal organizations

2_{English translation; “The implementation of the sabbatical year. How does it affect the employment office as an}

FAWE Rwanda Chapter- An implementation story

FAWE RWANDA CHAPTER &

’THE CENTRE OF

EXCELLENCE FOR GIRLS’

AN IMPLEMENTATION STORY

FAWE RWANDA CHAPTER &

’THE CENTRE OF

EXCELLENCE FOR GIRLS’

AN IMPLEMENTATION STORY

EMELIE HOLM

PREFACE

TABLE OF CONTENTS

TABLE OF FIGURES

1. INTRODUCTION

2. BACKGROUND INFORMATION

3. RWANDA

4. EVALUATION MODEL

5. THEORY OF ORGANIZATION &

IMPLEMENTATION

6. EARLIER STUDIES